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Case Study of Fangyuan Township, Chunghua County, Taiwan

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Case Study of Fangyuan Township, Chunghua County, Taiwan Journal of Marine Science and Technology, Vol. 27, No. 5, pp. 427-434 (2019) 427 DOI: 10.6119/JMST.201910_27(5).0005 PERCEPTIONS OF OFFSHORE WIND FARMS AND COMMUNITY DEVELOPMENT: CASE STUDY OF FANGYUAN TOWNSHIP, CHUNGHUA COUNTY, TAIWAN Ku-Jung Lin1,2, Chia-Pao Hsu1, and Hung-Yu Liu1 Key words: Offshore Wind Farms (OWF), green energy develop- of Fangyuan for providing community benefits by reviving the ment, community engagement, stakeholder empower- local culture and encouraging tourism based on both tradi- ment, traditional industries, community-based tourism tional activities and OWF appeared to be received favorably by all involved. ABSTRACT I. INTRODUCTION Surrounded by the ocean, Taiwan has many rich marine A search for new sources of clean energy to mitigate the cultural resources that have benefited its coastal communities prospect of climate changes is now underway. The power grid and led to the development of diverse traditional marine in- is undergoing a transformation as countries across the globe dustries. A typical example is the unique tradition of “Sea seek to achieve zero emissions for power systems before the Buffalos Working in the Oyster Field”, which has been prac- year 2050 (IPCC, 2018). Owing to uncertainty in the global ticed for over a century in Fangyuan Township of Changhua power market, and also due to changes in the renewable en- County. The cultural landscape of buffalos and workers cul- ergy policies of various nations, the detailed outlook for the tivating oyster fields has been recognized as a precious cul- wind power industry is unpredictable; however, wind power tural heritage by both local and international parties. However, will certainly play a significant role in energy systems in the Fangyuan Township is facing a turning point due to the in- future. Taiwan is a country that relies upon imported energy stallation of offshore wind turbines. Development-promoting for as much as 98% of its power supply (Bureau of Energy, public agencies and the private sectors are both in need of a Ministry of Economic Affairs [henceforth BOE], 2019). Faced new vision of communities in which a viable combination of with such a high reliance on fossil fuels and with doubts about new, green-energy-based industries and traditional, cul- the safety of nuclear power plants and ways to dispose of ture-based industries is allowed to take shape. With that in nuclear waste, public opinion in Taiwan is shifting towards the mind, we reviewed several other localities’ experience of goal of a low-carbon and nuclear-free home land in the next green-energy development and its effect on the community. few decades (Taiwan Research Institute, 2019). In light of the We also analyzed how traditional cultural properties have been shortage of self-produced energy and the island’s great de- incorporated into the tourism industry in Fangyuan Township pendence on imported energy, as well as the “Greenhouse Gas while also investigating the potential impact of the develop- Reduction and Management Act” promulgated in 2015 (Laws ment of offshore wind farms (OWF) on traditional oyster and Regulations Database of ROC, 2019) and the Paris cultivation there. A series of interviews and meetings with key Agreement reached in UNFCCC COP21 (UNFCCC, 2019), stakeholders were held to examine, from different points of Taiwan is bound to follow a path of energy transition and must view, the benefits offered to the community by OWF devel- seize this opportunity for green growth. Among the potential opers and governmental decision-makers. Our normative case sources of renewable energy, offshore wind energy is probably one of the most practical ones for this island, with an estimated capacity of at least 6-10GW in the Taiwan Strait (Lai et al., Paper submitted 06/26/19; revised 07/10/19; accepted 07/22/19. Author for 2012). Offshore wind power thus offers Taiwan a fine oppor- correspondence: Ku-Jung Lin (e-mail: [email protected]) 1 tunity to increase the proportion of renewable energy in its Institute of Oceanic Culture, National Taiwan Ocean University, Kee- power supply. Establishing offshore wind farms (OWF) would lung202, Taiwan, R.O.C. 2Bachelor Degree Program in Oceanic Tourism Management, National also encourage localization of the power supply chain.. Taiwan Ocean University, Keelung202, Taiwan, R.O.C. When BOE (2015) issued its “Directions of Zone Appli- 428 Journal of Marine Science and Technology, Vol. 27, No. 5 (2019) cation for Planning of OWF”, 36 “Zones of Potential” (ZAP) and represent a strong cultural-heritage value for the area's were specified and offered to wind power developers either by population. Fangyuan Township also attracts tourists owing to application or by auction. On 30 April 2018, 7 applicants were its abundance of marine cultural properties. Here we present awarded sufficient grid capacity to commission 10 OWF the steps taken so far to implement community engagement in (BOE, 2018a). Then, at the auction completed on 22 June Fangyuan and to inspire new sea-based small businesses to 2018, 2 companies were commissioned to first complete 4 benefit the community as the marine fisheries there are im- pilot projects and then provide a total of 1,664MW by 2025 paired. We also discuss the likely future of culturally valued (BOE, 2018b). In all, 2 domestic and 5 foreign investors have traditional practices like the “Fangyuan Sea Buffalos” (Lin, begun to work in the Taiwan Strait. Geographically, Changhua 2015; Pan, 2017). County including Fangyuan exceeded all other jurisdictions, Our working assumption has been that community benefits with a promised output of 2,400MW that represents 62.6% of linked to OWF can provide a means of smoothing the way for the total envisioned new wind-power capacity. community approval of the installation process (Lin et al., in The Energy Policy Bridging and Communication Division prep.), and so we also report on and try to rationalize the rather (EPBCD) of the National Energy Program-Phase II (NEP-II) high degree of ambivalence we found among the townsfolk was established within MOST (Ministry of Science and with respect to the development-based benefits on offer. There Technology) in 2014 to bridge and foster communications, as are different opinions, based on different public-policy well as alleviate conflicts among the BEO, developers, the viewpoints, as to why and whether wind farms need to be local public, politicians, and communities about renewable installed off Fangyuan. A platform for negotiation is required energy issues (NEP II, 2014). Such problems commonly arise for stakeholders and OWF developers to arrive at a mutual from the pursuit of controversial projects such as the devel- understanding of the irrespective viewpoints. As we had hoped, opment of offshore wind power, but EPBCD has encouraged the stakeholders and developers and local government were meaningful public engagement and partnership during both able to come together to devote themselves to the common the decision-making phase and project implementation. With goal of regional prosperity. The developers also recognized the respect to the development of communities and offshore wind importance of planning and developing of industries based on power, it engages local stakeholders, OWF developers, engi- local cultural properties, some ideas for which are described neers, central and local agency decision-makers, and others, below. encouraging them to learn from each other and to carefully consider the trade-offs involved in developing OWF. In this II. METHODS AND DATA COLLECTION paper, which summarizes the authors’ activities on behalf of EPBCD, we try to show how community engagement and As one facet of EPBCD’s NEP-II project starting in 2014, benefit sharing can be integrated to offer community support we worked for more than 5 years in Changhua County to despite the initially conflicting viewpoints of those involved. investigate how to facilitate discussions among Fangyuan Community engagement refers to the processes through which Township’s stakeholders with respect to renewable energy a developer interacts with the community to guide the devel- development, the tourism landscape, wetland conservation, opment of a project. It is a general term used to refer to many and cultural properties. The most important goal was to em- activities including communications, consultation, participa- power stakeholders to become participants and practitioners in tion, and co-development (e.g., Cass et al. 2010; Lane and Fangyuan’s community development. The provision of Hicks, 2017). Although use of the term has become com- community benefits is of great importance for offshore wind monplace, its implementation in practice has been haphazard, project development and approval in Taiwan. How to achieve with varying degrees of commitment to genuine community this in ways acceptable to the many different stakeholders is a participation in directing the process and outcomes of devel- big challenge. In the present study, on behalf of EPBCD, we opment. There is no single best way to do community en- first reviewed the history and prospectus for OWF develop- gagement, and no one-size-fits-all approach, but several key ment off Fangyuan and in nearby regions, as well as the known factors in its successful implementation in other environmental impacts of offshore power installations, which wind-farm-developing countries have been noted (Lane and can involve noise, visual intrusion on the natural landscape, Hicks, 2017). impingements on local cultural heritage and fishing rights, and The present study was conducted in the Fangyuan coastal so on. We also reviewed how cultural attributes and tourism region, where 5 OWF developers are planning to construct 10 have been affected by or have accommodated themselves to OWF. Fangyuan Township is located in the southwestern OWF in various places around the world. coastal area of Taiwan and consists of 26 villages with a total Lane and Hicks (2017) indicated that successful commu- population of approximately 36,000 people.
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